The Framework Documents
22 February 1995

A New Framework For Agreement

A shared understanding between
the British and Irish Governments
to assist discussion and negotiation involving
the Northern Ireland parties

The Joint Declaration acknowledges that the most urgent and important
issue facing the people of Ireland, North and South, and the British and
Irish Governments together, is to remove the causes of conflict, to overcome
the legacy of history and to heal the divisions which have resulted.

Both Governments recognise that there is much for deep regret on all
sides in the long and often tragic history of Anglo-Irish relations, and
of relations in Ireland. They believe it is now time to lay aside, with
dignity and forbearance, the mistakes of the past. A collective effort
is needed to create, through agreement and reconciliation, a new beginning
founded on consent, for relationships within Northern Ireland, within the
island of Ireland and between the peoples of these islands. The Joint Declaration
itself represents an important step towards this goal, offering the people
of Ireland, North and South, whatever their tradition, the basis to agree
that from now on their differences can be negotiated and resolved exclusively
by peaceful political means.

The announcements made by the Irish Republican Army on 31 August 1994
and the Combined Loyalist Military Command on 13 October 1994 are a welcome
response to the profound desire of people throughout these islands for
a permanent end to the violence which caused such immense suffering and
waste and served only to reinforce the barriers of fear and hatred, impeding
the search for agreement.

A climate of peace enables the process of healing to begin. It transforms
the prospects for political progress, building on that already made in
the Talks process. Everyone now has a role to play in moving irreversibly
beyond the failures of the past and creating new relationships capable
of perpetuating peace with freedom and justice.

In the Joint Declaration both Governments set themselves the aim of
fostering agreement and reconciliation, leading to a new political framework
founded on consent. A vital dimension of this three-stranded process is
the search, through dialogue with the relevant Northern Ireland parties,
for new institutions and structures to take account of the totality of
relationships and to enable the people of Ireland to work together in all
areas of common interest while fully respecting their diversity.

Both Governments are conscious of the widespread desire, throughout
both islands and more widely, to see negotiations underway as soon as possible.
They also acknowledge the many requests, from parties in Northern Ireland
and elsewhere, for both Governments to set out their views on how agreement
might be reached on relationships within the island of Ireland and between
the peoples of these islands.

In this Framework Document both Governments therefore describe a shared
understanding reached between them on the parameters of a possible outcome
to the Talks process, consistent with the Joint Declaration and the statement
of 26 March 1991. Through this they hope to give impetus and direction
to the process and to show that a fair and honourable accommodation can
be envisaged across all the relationships, which would enable people to
work constructively for their mutual benefit, without compromising the
essential principles or the long-term aspirations or interests of either
tradition or of either community.

Both Governments are aware that the approach in this document presents
challenges to strongly-held positions on all sides. However, a new beginning
in relationships means addressing fundamental issues in a new way and inevitably
requires significant movement from all sides. This document is not a rigid
blueprint to be imposed but both Governments believe it sets out a realistic
and balanced framework for agreement which could be achieved, with flexibility
and goodwill on all sides, in comprehensive negotiations with the relevant
political parties in Northern Ireland. In this spirit, both Governments
offer this document for consideration and accordingly strongly commend
it to the parties, the people in the island of Ireland and more widely.

The primary objective of both Governments in their approach to Northern
Ireland is to promote and establish agreement among the people of the island
of Ireland, building on the Joint Declaration. To this end they will both
deploy their political resources with the aim of securing a new and comprehensive
agreement involving the relevant political parties in Northern Ireland
and commanding the widest possible support.

They take as guiding principles for their co-operation in search of
this agreement:

(i)

the principle of self-determination, as set out in the Joint Declaration;

(ii)

that the consent of the governed is an essential ingredient for stability
in any political arrangement;

(iii)

that agreement must be pursued and established by exclusively democratic,
peaceful means, without resort to violence or coercion;

(iv)

that any new political arrangements must be based on full respect for,
and protection and expression of, the rights and identities of both traditions
in Ireland and even-handedly afford both communities in Northern Ireland
parity of esteem and treatment, including equality of opportunity and advantage.

They acknowledge that in Northern Ireland, unlike the situation which
prevails elsewhere throughout both islands, there is a fundamental absence
of consensus about constitutional issues. There are deep divisions between
the members of the two main traditions living there over their respective
senses of identity and allegiance, their views on the present status of
Northern Ireland and their vision of future relationships in Ireland and
between the two islands. However, the two Governments also recognise that
the large majority of people, in both parts of Ireland, are at one in their
commitment to the democratic process and in their desire to resolve political
differences by peaceful means.

In their search for political agreement, based on consent, the two
Governments are determined to address in a fresh way all of the relationships
involved. Their aim is to overcome the legacy of division by reconciling
the rights of both traditions in the fullest and most equitable manner.
They will continue to work towards and encourage the achievement of agreement,
so as to realise the goal set out in the statement of 26 March 1991 of
"a new beginning for relationships within Northern Ireland, within
the island of Ireland and between the peoples of these islands".

The two Governments will work together with the parties to achieve
a comprehensive accommodation, the implementation of which would include
interlocking and mutually supportive institutions across the three strands,
including:

(a)

Structures within Northern Ireland (paragraphs 22 and 23) - to enable
elected representatives in Northern Ireland to exercise shared administrative
and legislative control over all those matters that can be agreed across
both communities and which can most effectively and appropriately be dealt
with at that level;

(b)

North/South institutions (paragraphs 24-38) - with clear identity and
purpose, to enable representatives of democratic institutions, North and
South, to enter into new, co-operative and constructive relationships;
to promote agreement among the people of the island of Ireland; to carry
out on a democratically accountable basis delegated executive, harmonising
and consultative functions over a range of designated matters to be agreed;
and to serve to acknowledge and reconcile the rights, identities and aspirations
of the two major traditions;

(c)

East-West structures (paragraphs 39-49) - to enhance the existing basis
for co-operation between the two Governments, and to promote, support and
underwrite the fair and effective operation of the new arrangements.

Constitutional Issues

Both Governments accept that agreement on an overall settlement requires,
inter alia, a balanced accommodation of the differing views of the two
main traditions on the constitutional issues in relation to the special
position of Northern Ireland.

Given the absence of consensus and depth of divisions between the two
main traditions in Northern Ireland, the two Governments agree that such
an accommodation will involve an agreed new approach to the traditional
constitutional doctrines on both sides. This would be aimed at enhancing
and codifying the fullest attainable measure of consent across both traditions
in Ireland and fostering the growth of consensus between them.

In their approach to Northern Ireland they will apply the principle
of self-determination by the people of Ireland on the basis set out in
the Joint Declaration: the British Government recognise that it is for
the people of Ireland alone, by agreement between the two parts respectively
and without external impediment, to exercise their right of self-determination
on the basis of consent, freely and concurrently given, North and South,
to bring about a united Ireland, if that is their wish; the Irish Government
accept that the democratic right of self-determination by the people of
Ireland as a whole must be achieved and exercised with and subject to the
agreement and consent of a majority of the people of Northern Ireland.

New arrangements should be in accordance with the commitments in the
Anglo-Irish Agreement and in the Joint Declaration. They should acknowledge
that it would be wrong to make any change in the status of Northern Ireland
save with the consent of a majority of the people of Northern Ireland.
If in future a majority of the people there wish for and formally consent
to the establishment of a united Ireland, the two Governments will introduce
and support legislation to give effect to that wish.

Both Governments recognise that Northern Ireland's current constitutional
status reflects and relies upon the present wish of a majority of its people.
They also acknowledge that at present a substantial minority of its people
wish for a united Ireland. Reaffirming the commitment to encourage, facilitate
and enable the achievement of agreement over a period among all the people
who inhabit the island, they acknowledge that the option of a sovereign
united Ireland does not command the consent of the unionist tradition,
nor does the existing status of Northern Ireland command the consent of
the nationalist tradition. Against this background, they acknowledge the
need for new arrangements and structures - to reflect the reality of diverse
aspirations, to reconcile as fully as possible the rights of both traditions,
and to promote co-operation between them, so as to foster the process of
developing agreement and consensus between all the people of Ireland.

They agree that future arrangements relating to Northern Ireland, and
Northern Ireland's wider relationships, should respect the full and equal
legitimacy and worth of the identity, sense of allegiance, aspiration and
ethos of both the unionist and nationalist communities there. Consequently,
both Governments commit themselves to the principle that institutions and
arrangements in Northern Ireland and North/South institutions should afford
both communities secure and satisfactory political, administrative and
symbolic expression and protection. In particular, they commit themselves
to entrenched provisions guaranteeing equitable and effective political
participation for whichever community finds itself in a minority position
by reference to the Northern Ireland framework, or the wider Irish framework,
as the case may be, consequent upon the operation of the principle of consent.

The British Government reaffirm that they will uphold the democratic
wish of a greater number of the people of Northern Ireland on the issue
of whether they prefer to support the Union or a sovereign united Ireland.
On this basis, they reiterate that they have no selfish strategic or economic
interest in Northern Ireland. For as long as the democratic wish of the
people of Northern Ireland is for no change in its present status, the
British Government pledge that their jurisdiction there will be exercised
with rigorous impartiality on behalf of all the people of Northern Ireland
in their diversity. It will be founded on the principles outlined in the
previous paragraph with emphasis on full respect for, and equality of,
civil, political, social and cultural rights and freedom from discrimination
for all citizens, on parity of esteem, and on just and equal treatment
for the identity, ethos and aspirations of both communities. The British
Government will discharge their responsibilities in a way which does not
prejudice the freedom of the people of Northern Ireland to determine, by
peaceful and democratic means, its future constitutional status, whether
in remaining a part of the United Kingdom or in forming part of a united
Ireland. They will be equally cognizant of either option and open to its
democratic realisation, and will not impede the latter option, their primary
interest being to see peace, stability and reconciliation established by
agreement among the people who inhabit the island. This new approach for
Northern Ireland, based on the continuing willingness to accept the will
of a majority of the people there, will be enshrined in British constitutional
legislation embodying the principles and commitments in the Joint Declaration
and this Framework Document, either by amendment of the Government of Ireland
Act 1920 or by its replacement by appropriate new legislation, and appropriate
new provisions entrenched by agreement.

As part of an agreement confirming the foregoing understanding between
the two Governments on constitutional issues, the Irish Government will
introduce and support proposals for change in the Irish Constitution to
implement the commitments in the Joint Declaration. These changes in the
Irish Constitution will fully reflect the principle of consent in Northern
Ireland and demonstrably be such that no territorial claim of right to
jurisdiction over Northern Ireland contrary to the will of a majority of
its people is asserted, while maintaining the existing birthright of everyone
born in either jurisdiction in Ireland to be part, as of right, of the
Irish nation. They will enable a new Agreement to be ratified which will
include, as part of a new and equitable dispensation for Northern Ireland
embodying the principles and commitments in the Joint Declaration and this
Framework Document, recognition by both Governments of the legitimacy of
whatever choice is freely exercised by a majority of the people of Northern
Ireland with regard to its constitutional status, whether they prefer to
continue to support the Union or a sovereign united Ireland.

Structures in Northern Ireland

Both Governments recognise that new political structures within Northern
Ireland must depend on the co-operation of elected representatives there.
They confirm that cross-community agreement is an essential requirement
for the establishment and operation of such structures. They strongly favour
and will support provision for cross-community consensus in relation to
decisions affecting the basic rights, concerns and fundamental interests
of both communities, for example on the lines adumbrated in Strand 1 discussions
in the 1992 round-table talks.

While the principles and overall context for such new structures are
a recognised concern of both Governments in the exercise of their respective
responsibilities, they consider that the structures themselves would be
most effectively negotiated, as part of a comprehensive three-stranded
process, in direct dialogue involving the relevant political parties in
Northern Ireland who would be called upon to operate them.

North/South Institutions

Both Governments consider that new institutions should be created to
cater adequately for present and future political, social and economic
inter-connections on the island of Ireland, enabling representatives of
the main traditions, North and South, to enter agreed dynamic, new, co-operative
and constructive relationships.

Both Governments agree that these institutions should include a North/South
body involving Heads of Department on both sides and duly established and
maintained by legislation in both sovereign Parliaments. This body would
bring together these Heads of Department representing the Irish Government
and new democratic institutions in Northern Ireland, to discharge or oversee
delegated executive, harmonising or consultative functions, as appropriate,
over a range of matters which the two Governments designate in the first
instance in agreement with the parties or which the two administrations,
North and South, subsequently agree to designate. It is envisaged that,
in determining functions to be discharged or overseen by the North/South
body, whether by executive action, harmonisation or consultation, account
will be taken of:

(i)

the common interest in a given matter on the part of both parts of
the island; or

(ii)

the mutual advantage of addressing a matter together; or

(iii)

the mutual benefit which may derive from it being administered by the
North/South body; or

(iv)

the achievement of economies of scale and the avoidance of unnecessary
duplication of effort.

In relevant posts in each of the two administrations participation in
the North/South body would be a duty of service. Both Governments believe
that the legislation should provide for a clear institutional identity
and purpose for the North/South body. It would also establish the body's
terms of reference, legal status and arrangements for political, legal,
administrative and financial accountability. The North/South body could
operate through, or oversee, a range of functionally-related subsidiary
bodies or other entities established to administer designated functions
on an all-island or cross-border basis.

Specific arrangements would need to be developed to apply to EU matters.
Any EU matter relevant to the competence of either administration could
be raised for consideration in the North/South body. Across all designated
matters and in accordance with the delegated functions, both Governments
agree that the body will have an important role, with their support and
co-operation and in consultation with them, in developing on a continuing
basis an agreed approach for the whole island in respect of the challenges
and opportunities of the European Union. In respect of matters designated
at the executive level, which would include all EC programmes and initiatives
to be implemented on a cross-border or island-wide basis in Ireland, the
body itself would be responsible, subject to the Treaty obligations of
each Government, for the implementation and management of EC policies and
programmes on a joint basis. This would include the preparation, in consultation
with the two Governments, of joint submissions under EC programmes and
initiatives and their joint monitoring and implementation, although individual
projects could be implemented either jointly or separately.

Both Governments envisage regular and frequent meetings of the North/South
body:

to discharge the functions agreed for it in relation to a range of
matters designated for treatment on an all-Ireland or cross-border basis;

to oversee the work of subsidiary bodies.

The two Governments envisage that legislation in the sovereign Parliaments
should designate those functions which should, from the outset, be discharged
or overseen by the North/South body; and they will seek agreement on these,
as on other features of North/South arrangements, in discussion with the
relevant political parties in Northern Ireland. It would also be open to
the North/South body to recommend to the respective administrations and
legislatures for their consideration that new functions should be designated
to be discharged or overseen by that body; and to recommend that matters
already designated should be moved on the scale between consultation, harmonisation
and executive action. Within those responsibilities transferred to new
institutions in Northern Ireland, the British Government have no limits
of their own to impose on the nature and extent of functions which could
be agreed for designation at the outset or, subsequently, between the Irish
Government and the Northern Ireland administration. Both Governments expect
that significant responsibilities, including meaningful functions at executive
level, will be a feature of such agreement. The British Government believe
that, in principle, any function devolved to the institutions in Northern
Ireland could be so designated, subject to any necessary savings in respect
of the British Government's powers and duties, for example to ensure compliance
with EU and international obligations. The Irish Government also expect
to designate a comparable range of functions.

Although both Governments envisage that representatives of North and
South in the body could raise for discussion any matter of interest to
either side which falls within the competence of either administration,
it is envisaged, as already mentioned, that its designated functions would
fall into three broad categories:

consultative:

the North/South body would be a forum where the two sides would consult
on any aspect of designated matters on which either side wished to hold
consultations. Both sides would share a duty to exchange information and
to consult about existing and future policy, though there would be no formal
requirement that agreement would be reached or that policy would be harmonised
or implemented jointly, but the development of mutual understanding or
common or agreed positions would be the general goal;

harmonising:

in respect of these designated responsibilities there would be, in
addition to the duty to exchange information and to consult on the formulation
of policy, an obligation on both sides to use their best endeavours to
reach agreement on a common policy and to make determined efforts to overcome
any obstacles in the way of that objective, even though its implementation
might be undertaken by the two administrations separately;

executive:

in the case of these designated responsibilities the North/South body
would itself be directly responsible for the establishment of an agreed
policy and for its implementation on a joint basis. It would however be
open to the body, where appropriate, to agree that the implementation of
the agreed policy would be undertaken either by existing bodies, acting
in an agency capacity, whether jointly or separately, North and South,
or by new bodies specifically created and mandated for this purpose.

In this light, both Governments are continuing to give consideration
to the range of functions that might, with the agreement of the parties,
be designated at the outset and accordingly they will be ready to make
proposals in that regard in future discussions with the relevant Northern
Ireland parties.

By way of illustration, it is intended that these proposals would include
at the executive level a range of functions, clearly defined in scope,
from within the following broad categories:

sectors involving a natural or physical all-Ireland framework;

EC programmes and initiatives;

marketing and promotion activities abroad;

culture and heritage.

Again, by way of illustration, the Governments would make proposals
at the harmonising level for a broader range of functions, clearly defined
in scope (including, as appropriate, relevant EU aspects), from within
the following categories:

aspects of -

agriculture and fisheries;

industrial development;

consumer affairs;

transport;

energy;

trade;

health;

social welfare;

education; and

economic policy.

By way of example, the category of agriculture and fisheries might
include agricultural and fisheries research, training and advisory services,
and animal welfare; health might include co-operative ventures in medical,
paramedical and nursing training, cross-border provision of hospital services
and major emergency/accident planning; and education might include mutual
recognition of teacher qualifications, co-operative ventures in higher
education, in teacher training, in education for mutual understanding and
in education for specialised needs.

The Governments also expect that a wide range of functions would be
designated at the consultative level.

Both Governments envisage that all decisions within the body would
be by agreement between the two sides. The Heads of Department on each
side would operate within the overall terms of reference mandated by legislation
in the two sovereign Parliaments. They would exercise their powers in accordance
with the rules for democratic authority and accountability for this function
in force in the Oireachtas and in new institutions in Northern Ireland.
The operation of the North/South body's functions would be subject to regular
scrutiny in agreed political institutions in Northern Ireland and the Oireachtas
respectively.

Both Governments expect that there would be a Parliamentary Forum,
with representatives from agreed political institutions in Northern Ireland
and members of the Oireachtas, to consider a wide range of matters of mutual
interest.

Both Governments envisage that the framework would include administrative
support staffed jointly by members of the Northern Ireland Civil Service
and the Irish Civil Service. They also envisage that both administrations
will need to arrange finance for the North/South body and its agencies
on the basis that these constitute a necessary public function.

Both Governments envisage that this new framework should serve to help
heal the divisions among the communities on the island of Ireland; provide
a forum for acknowledging the respective identities and requirements of
the two major traditions; express and enlarge the mutual acceptance of
the validity of those traditions; and promote understanding and agreement
among the people and institutions in both parts of the island. The remit
of the body should be dynamic, enabling progressive extension by agreement
of its functions to new areas. Its role should develop to keep pace with
the growth of harmonisation and with greater integration between the two
economies.

East-West Structures

Both Governments envisage a new and more broadly-based Agreement, developing
and extending their co-operation, reflecting the totality of relationships
between the two islands, and dedicated to fostering co-operation, reconciliation
and agreement in Ireland at all levels.

They intend that under such a new Agreement a standing Intergovernmental
Conference will be maintained, chaired by the designated Irish Minister
and by the Secretary of State for Northern Ireland. It would be supported
by a Permanent Secretariat of civil servants from both Governments.

The Conference will be a forum through which the two Governments will
work together in pursuance of their joint objectives of securing agreement
and reconciliation amongst the people of the island of Ireland and of laying
the foundations for a peaceful and harmonious future based on mutual trust
and understanding between them.

The Conference will provide a continuing institutional expression for
the Irish Government's recognised concern and role in relation to Northern
Ireland. The Irish Government will put forward views and proposals on issues
falling within the ambit of the new Conference or involving both Governments,
and determined efforts will be made to resolve any differences between
the two Governments. The Conference will be the principal instrument for
an intensification of the co-operation and partnership between both Governments,
with particular reference to the principles contained in the Joint Declaration,
in this Framework Document and in the new Agreement, on a wide range of
issues concerned with Northern Ireland and with the relations between the
two parts of the island of Ireland. It will facilitate the promotion of
lasting peace, stability, justice and reconciliation among the people of
the island of Ireland and maintenance of effective security co-operation
between the two Governments.

Both Governments believe that there should also be provision in the
Agreement for developing co-operation between the two Governments and both
islands on a range of "East-West" issues and bilateral matters
of mutual interest not covered by other specific arrangements, either through
the Anglo-Irish Intergovernmental Council, the Conference or otherwise.

Both Governments accept that issues of law and order in Northern Ireland
are closely intertwined with the issues of political consensus. For so
long as these matters are not devolved, it will be for the Governments
to consider ways in which a climate of peace, new institutions and the
growth of political agreement may offer new possibilities and opportunities
for enhancing community identification with policing in Northern Ireland,
while maintaining the most effective possible deployment of the resources
of each Government in their common determination to combat crime and prevent
any possible recourse to the use or threat of violence for political ends,
from any source whatsoever.

The Governments envisage that matters for which responsibility is transferred
to new political institutions in Northern Ireland will be excluded from
consideration in the Conference, except to the extent that the continuing
responsibilities of the Secretary of State for Northern Ireland are relevant,
or that cross-border aspects of transferred issues are not otherwise provided
for, or in the circumstances described in the following paragraph.

The Intergovernmental Conference will be a forum for the two Governments
jointly to keep under review the workings of the Agreement and to promote,
support and underwrite the fair and effective operation of all its provisions
and the new arrangements established under it. Where either Government
considers that any institution, established as part of the overall accommodation,
is not properly functioning within the Agreement or that a breach of the
Agreement has otherwise occurred, the Conference shall consider the matter
on the basis of a shared commitment to arrive at a common position or,
where that is not possible, to agree a procedure to resolve the difference
between them. If the two Governments conclude that a breach has occurred
in any of the above circumstances, either Government may make proposals
for remedy and adequate measures to redress the situation shall be taken.
However, each Government will be responsible for the implementation of
such measures of redress within its own jurisdiction. There would be no
derogation from the sovereignty of either Government; each will retain
responsibility for the decisions and administration of government within
its own jurisdiction.

In the event that devolved institutions in Northern Ireland ceased
to operate, and direct rule from Westminster was reintroduced, the British
Government agree that other arrangements would be made to implement the
commitment to promote co-operation at all levels between the people, North
and South, representing both traditions in Ireland, as agreed by the two
Governments in the Joint Declaration, and to ensure that the co-operation
that had been developed through the North/South body be maintained.

Both Governments envisage that representatives of agreed political
institutions in Northern Ireland may be formally associated with the work
of the Conference, in a manner and to an extent to be agreed by both Governments
after consultation with them. This might involve giving them advance notice
of what is to be discussed in the Conference, enabling them to express
views to either Government and inviting them to participate in various
aspects of the work of the Conference. Other more structured arrangements
could be devised by agreement.

The Conference will also be a framework for consultation and coordination
between both Governments and the new North/South institutions, where the
wider role of the two Governments is particularly relevant to the work
of those institutions, for example in a coordinated approach on EU issues.
It would be for consideration by both Governments, in consultation with
the relevant parties in the North, or with the institutions after they
have been established, whether to achieve this through formal or ad hoc
arrangements.

Protection of Rights

There is a large body of support, transcending the political divide,
for the comprehensive protection and guarantee of fundamental human rights.
Acknowledging this, both Governments envisage that the arrangements set
out in this Framework Document will be complemented and underpinned by
an explicit undertaking in the Agreement on the part of each Government,
equally, to ensure in its jurisdiction in the island of Ireland, in accordance
with its constitutional arrangements, the systematic and effective protection
of common specified civil, political, social and cultural rights. They
will discuss and seek agreement with the relevant political parties in
Northern Ireland as to what rights should be so specified and how they
might best be further protected, having regard to each Government's overall
responsibilities including its international obligations. Each Government
will introduce appropriate legislation in its jurisdiction to give effect
to any such measure of agreement.

In addition, both Governments would encourage democratic representatives
from both jurisdictions in Ireland to adopt a Charter or Covenant, which
might reflect and endorse agreed measures for the protection of the fundamental
rights of everyone living in Ireland. It could also pledge a commitment
to mutual respect and to the civil rights and religious liberties of both
communities, including:

the right of free political thought,

the right to freedom and expression of religion,

the right to pursue democratically national and political aspirations,

the right to seek constitutional change by peaceful and legitimate
means,

the right to live wherever one chooses without hindrance,

the right to equal opportunity in all social and economic activity,
regardless of class, creed, gender or colour.

This Charter or Covenant might also contain a commitment to the principle
of consent in the relationships between the two traditions in Ireland.
It could incorporate also an enduring commitment on behalf of all the people
of the island to guarantee and protect the rights, interests, ethos and
dignity of the unionist community in any all-Ireland framework that might
be developed with consent in the future, to at least the same extent as
provided for the nationalist community in the context of Northern Ireland
under the structures and provisions of the new Agreement.

The Covenant might also affirm on behalf of all traditions in Ireland
a solemn commitment to the exclusively peaceful resolution of all differences
between them including in relation to all issues of self-determination,
and a solemn repudiation of all recourse to violence between them for any
political end or purpose.

Conclusion

Both Governments agree that the issues set out in this Framework Document
should be examined in the most comprehensive attainable negotiations with
democratically mandated political parties in Northern Ireland which abide
exclusively by peaceful means and wish to join in dialogue on the way ahead.

Both Governments intend that the outcome of these negotiations will
be submitted for democratic ratification through referendums, North and
South.

Both Governments believe that the present climate of peace, which owes
much to the imagination, courage and steadfastness of all those who have
suffered from violence, offers the best prospect for the Governments and
the parties in Northern Ireland to work to secure agreement and consent
to a new political accommodation. To accomplish that would be an inestimable
prize for all, and especially for people living in Northern Ireland, who
have so much to gain from such an accommodation, in which the divisions
of the past are laid aside for ever and differences are resolved by exclusively
political means. Both Governments believe that a new political dispensation,
such as they set out in this Framework Document, achieved through agreement
and reconciliation and founded on the principle of consent, would achieve
that objective and transform relationships in Northern Ireland, in the
island of Ireland and between both islands.

With agreement, co-operation to the mutual benefit of all living in
Ireland could develop without impediment, attaining its full potential
for stimulating economic growth and prosperity. New arrangements could
return power, authority and responsibility to locally-elected representatives
in Northern Ireland on a basis acceptable to both sides of the community,
enabling them to work together for the common welfare and interests of
all the community. The diversity of identities and allegiances could be
regarded by all as a source of mutual enrichment, rather than a threat
to either side. The divisive issue of sovereignty might cease to be symbolic
of the domination of one community over another. It would instead be for
decision under agreed ground-rules, fair and balanced towards both aspirations,
through a process of democratic persuasion governed by the principle of
consent rather than by threat, fear or coercion. In such circumstances
the Governments hope that the relationship between the traditions in Northern
Ireland could become a positive bond of further understanding, co-operation
and amity, rather than a source of contention, between the wider British
and Irish democracies.

Accordingly the British and Irish Governments offer for consideration
and strongly commend these proposals, trusting that, with generosity and
goodwill, the peoples of these islands will build on them a new and lasting
agreement.